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Finding a Home for the Right to Academic Freedom in the U.N

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Finding a Home for the Right to Academic Freedom in the U.N 11-6 BEITER (DO NOT DELETE) 9/1/2016 3:26 PM YEARNING TO BELONG: FINDING A “HOME” FOR THE RIGHT TO ACADEMIC FREEDOM IN THE U.N. HUMAN RIGHTS COVENANTS * KLAUS D. BEITER ** TERENCE KARRAN *** KWADWO APPIAGYEI-ATUA Abstract Academic freedom is generally considered a human right, both nationally and internationally. However, no legally binding international human rights instrument—neither at the global nor the regional level—provides express protection for this right; this includes the two most important global human rights treaties, the International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights, both of 1966. This begs the question: Does the right to academic freedom not—even so—have a “home” in either or both of the U.N. Human Rights Covenants? Can and should academic freedom be protected as part of the right to freedom of expression in Article 19 of the former Covenant? Or does Article 15 on “cultural rights” of * Klaus D. Beiter, B.Iur. LL.B. (UNISA, Pretoria), Dr. iur. (LMU Munich); Associate Professor, North-West University (Potchefstroom Campus), Faculty of Law, South Africa. The author wishes to thank the European Commission for its award of a Marie Curie Intra-European Fellowship under its Seventh Framework Programme for research funding, enabling the author to complete work on the project “Safeguarding Academic Freedom in Europe” at the University of Lincoln, U.K. ** Terence Karran, Professor of Higher Education Policy, School of Education, University of Lincoln; B.Sc. (Economics and Sociology) Joint Honours, Aberystwyth, PhD Government, University of Manchester. *** Kwadwo Appiagyei-Atua, LL.B. (Univ. of Ghana, Legon), BL (Ghana School of Law), LL.M. (Dalhousie Univ., Canada), DCL (McGill Univ., Canada); Senior Lecturer, University of Ghana, School of Law. The author wishes to thank the European Commission for its award of a Marie Curie International Incoming Fellowship under its Seventh Framework Programme, enabling the author to complete work on the project “Building Academic Freedom and Democracy in Africa” at the University of Lincoln, U.K. 11-6 BEITER (DO NOT DELETE) 9/1/2016 3:26 PM 108 INTERCULTURAL HUMAN RIGHTS LAW REVIEW [Vol. 11 the latter Covenant constitute the proper provision? Or is it, in fact, Article 13 on the right to education, also of the latter Covenant, that encompasses academic freedom? Yet another option would be for different aspects of the right to academic freedom to be considered addressed by different Covenant provisions, including but not limited to those cited. However, if the latter option applies, does – or should – not one of these provisions be seen to be the primary or overarching provision? This article will attempt to answer these questions, commenting on the adequacy or otherwise of the various approaches discernible. Shedding light on the matter may well facilitate the formulation of a General Comment on the right to academic freedom by the proper U.N. human rights treaty body – and in this way help dispelling some of the fundamental misconceptions regarding the true purport of this right. 11-6 BEITER (DO NOT DELETE) 9/1/2016 3:26 PM 2016] YEARNING TO BELONG 109 Table of Contents Introduction ..................................................................................... 110 I.Historical Development of Academic Freedom ............................ 113 II.Content of the Right to Academic Freedom in the Light of UNESCO’s Recommendation concerning the Status of Higher-Education Teaching Personnel of 1997..................... 119 III.Rationale for the Protection of Academic Freedom as a Human Right.......................................................................... 128 IV.Doctrinal Basis of the Right to Academic Freedom under the U.N. Human Rights Covenants ............................................. 140 A. Relevant Provisions of the U.N. Human Rights Covenants ........................................................................ 140 B. The Right to Freedom of Expression in Article 19 of the International Covenant on Civil and Political Rights ................................................................ 154 C. Cultural Rights, including the Right to Freedom of Scientific Research, in Article 15 of the International Covenant on Economic, Social and Cultural Rights ................................................................ 163 D. The Right to Education in Article 13 of the International Covenant on Economic, Social and Cultural Rights ................................................................ 175 Conclusion ....................................................................................... 189 11-6 BEITER (DO NOT DELETE) 9/1/2016 3:26 PM 110 INTERCULTURAL HUMAN RIGHTS LAW REVIEW [Vol. 11 Introduction Some ten years back, the well-known international non- governmental organization (NGO) Human Rights Watch, in one of its briefing papers under the heading “Academic Freedom under International Law,” commented that [a]cademic freedom is more than just the freedom of professors to speak and write freely in their fields of specialty. It also recognizes the role that academics play as intellectual shapers of society. As such, academic freedom is a sensitive barometer of a government’s respect for human rights.1 The importance of academic freedom thus having been recognized by a major human rights NGO—reflecting a sentiment generally held by the human rights community—one would wish to see it protected as a human right in legally binding international human rights instruments, notably the two most important global human rights treaties, the International Covenant on Civil and Political Rights (ICCPR) and/or the International Covenant on Economic, Social and Cultural Rights (ICESCR), both of 1966. However, neither of the two U.N. Human Rights Covenants expressly mentions a right to academic freedom. All the same—and as notably reflected by comments of the Human Rights Committee and the Committee on Economic, Social and Cultural Rights, the two bodies supervising implementation of the ICCPR and ICESCR, respectively2—there seems to exist consensus that the Covenants should be considered to protect that right. 1 HUMAN RIGHTS WATCH, MEMORANDUM TO THE TURKISH GOVERNMENT ON HUMAN RIGHTS WATCH’S CONCERNS WITH REGARD TO ACADEMIC FREEDOM IN HIGHER EDUCATION, AND ACCESS TO HIGHER EDUCATION FOR WOMEN WHO WEAR THE HEADSCARF 7 (June 29, 2004), available at http://www.hrw.org /legacy/backgrounder/eca/turkey/2004/headscarf_memo.pdf. 2 See infra Subsections IV-B and IV-D, where some of these comments are cited and examined. 11-6 BEITER (DO NOT DELETE) 9/1/2016 3:26 PM 2016] YEARNING TO BELONG 111 The discussion that follows will address the question whether either or both of the Covenants does or do actually offer protection to the right to academic freedom and, if so, which provision(s) should be relied on in this regard. The latter is not a mere theoretical question as, who may raise a claim and what the nature and scope of his or her entitlements are, may well depend on the specific provision invoked. So as to contextualize the discussion, reference will be made to the historical development of the idea of academic freedom, the content of the right to academic freedom, essentially in the light of UNESCO’s Recommendation concerning the Status of Higher- Education Teaching Personnel of 1997, and the rationale for the protection of academic freedom as a human right. Dealing with the stated aspects will prove helpful in finding a “home” for the right to academic freedom in the U.N. Human Rights Covenants. This article argues that many provisions of both Covenants, including inter alia Article 19 of the ICCPR on the right to freedom of expression and Article 15 of the ICESCR, covering the right to freedom of scientific research, may and should be relied on when protecting (aspects of) the right to academic freedom. It also argues, however, that Article 13 of the ICESCR on the right to education— which on closer scrutiny really is an open-ended provision in the sphere of education—constitutes the provision which assembles all aspects of academic freedom under “a single roof” and whose normative context provides the proper framework for interpretation. This conclusion may be stated to have strengthened the motivation of the Scholars at Risk Network, a U.S.-based NGO attending to the plight of scholars worldwide whose academic freedom is threatened or violated, to doctrinally base its work not solely on the right to freedom of expression, but to introduce the right to education as the second pillar supporting its activities.3 Identifying the fundamental educational norm of Article 13 as 3 See Robert Quinn & Jesse Levine, Intellectual-HRDs and Claims for Academic Freedom under Human Rights Law, 18 INT’L J. HUM. RTS. 898, 902–12, specifically at 903–05, 914 (2014). Prof. Quinn is the Executive Director and Mr. Levine the Advocacy Officer of the Scholars at Risk Network. For more information on the Scholars at Risk Network, see its website: Scholars at Risk Network, http://scholarsatrisk.nyu.edu (last visited Aug. 28, 2016). 11-6 BEITER (DO NOT DELETE) 9/1/2016 3:26 PM 112 INTERCULTURAL HUMAN RIGHTS LAW REVIEW [Vol. 11 the “true seat” of the right to academic freedom is of some significance: It makes it clear that academic freedom entails much more than free speech rights as covered by the right to freedom of expression—a right, in fact, accruing to each and every person. Academic freedom also covers rights of
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